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1&— 47872-i OPO 


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DECLASSIFIED 
SEE EXCHANGE & GIFT DIV. 
DECLASSIFICATION FILE NO.*7 / 


gONPIDEIlTlAL 


CIVIL AFFAIRS GUIDE 


u, 




ITALIAN PORT ADMINISTRATION 


Infox'mation of interest to GiTil 
Affairs Office!' dealing with 
port administration in Italy 
during its occupation.-. 


R & A No, 1352 




Prepared by 


Research and Analysis Branch 
Office of Strategic Services 


for 


Civil Affairs Division 
V/ar Department 


27 October 1943 


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ma-& £>/2.//*7 


CONFIDENTIAL 


TABLE OF CONTENTS 

I, General Considerations . . 

A, Shipping and Its Importance. 

Bp Principal Italian Ports. 

C. The Problem of Administration.„ 

II. Administration and Law . 

A. Port Administration. ............ 

B. Special Port Administration.. 

C. Property Interests with Respect to Ports . . 

D. The Corporative State. .... . 

III. Suggestions for the Administering Agency . . . . 

A. The General Problem. 

B. The Advantages of Mixed Control. ...... 

C. Specific Recommendations . 

Bibliographical Note ... j.- 




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- 1 - 


0 On FI DF.T% r IAL 


Io GENERAL CONSIDERATIONS 
A* Shipping arid Its Importance 

Shipping is essential to Italy’s economic life, 
and unless shipping ana port facilities are maintained, it 
would not only be Ir. possible to make full use of the country 
as a rear base, but even to supply the minimum requirements 
of the relatively low Italian standards of living* 

A deficit country in respect to many important food¬ 
stuffs and raw materials, Italy normally imports wheat and 
other cereals; fish, oils, fats and eggs; leather and hides; 
coal, fuel oil, iron, manganese, copper, nickel, tin, 
magnesium, and other metals* 

But, due largely to geographical conditions, most of 
these imports, normally come by water* Italy consists of 

a lon^, narrow peninsula, very few parts of which are more 
7 0 

than 60 or miles from the sea and of two large islands* 
Terrain in general Is rugged and Italy itself is bisected 
from north to south by the rough mountain backbone of the 
Apennines* Obviously the same geographical factors make 
also for a considerable coastwise trade* 

In total trade the figures bear this out* To take 
as on example 1969, the last pre-war year, the total sea¬ 
borne cargo traffic amounted to approximately 46,000,000 
metric tons* In 1938-39, an equivalent year, freight 
carried by rail was approximately 47,000,000 tons* Thus 
sea-borne traffic was virtually as large as rail traffic* 

But in the import trade, sea traffic was many times 
larger than rail traffic* In 1939 imports from abroad 

































































































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CONI’r e*:tial 


- 2 ~ 

carried b j ship totalled approximately 20,000,000 metric 
tons* Imports from abroad carried by rail in 1938-39 
totalled 3,500,000 metric tons* 

Total cargo carried in 1939 in the coastwise trade 
was approximately 23,000,000 metric tons. There is no 
way of makin 0 a comparison with equivalent railway figures, 
and some exports and imports are included in the total, but 
obviously it i3 an important trade* 

Another factor which in the past has contributed to 
the large amount of cargo which arrived in Italy by sea, 
or was moved from one part of Italy to another in vessels, 
is the relative cheapness of sea-borne traffic, and, 
perhaps also the fact that Italy is traditionally a sea¬ 
faring nation. The great maritime states of the Twiddle 

Ages were '{Fisa, Genoa, and Venice* Such seafarers as the 

\ 

two Cabots,. Columbus, Amerigo Vespucci, and Verragjano ware 


all Italians 








- o ~ 


CONFIDTCTIAL 


Bo Principal Italian Ports 

To take care of this sea-borne traffic, Italy has 
developed a large number of seaports. In 141 places on 
the Italian mainland, 25 places in Sicily, and 16 places 
in Sardinia, 5000 or more metric tons of cargo have been 
handled in at least one recent year, but actually the 
greater part of cargo traffic is handled through a rela¬ 
tively small number of ports. 

In 1939 the six most active Italian seaports handled 
23,000,000 metric tons of cargo or half the total sea-borne 
cargo traffic of Italy. The ports, with their traffic 


figures. 

follow: 



Port 

Unloaded 

Loaded 

Total 


(metric 

tons) 


Genoa 

6,524,000 

1,266,000 

7,790,000 

Venice 

3,826,000 

965,000 

4,791,000 

Trieste 

2,149,000 

l f 076, 000 

3,225,000 

Savona 

2,350,000 

421,000 

2,771,000 

Naples 

2,077,000 

463,000 

2, 540,000 

Leghorn 

1,559,000 

609,000 

2,168,000 


Of these, Savona is a specialty port with heavy 
imports of coal, iron, and oil and might not be quite as 
useful for the handling of general cargo, but the other 
five have ample facilities of all kinds with accommodations 
for a large number of ocean-going vessels. 

In 1939 the second six most active Italian ports 
handled about 10,000,000 metric tons of cargo, or approxi¬ 
mately 21 percent of the total sea-borne cargo traffic of 
Italy. These ports, with their traffic figures, follows 





















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4 - 


CONFIDENTIAL 


Port 

Unloaded 

Loaded 

Total 


(metric 

i tons) 


Bagnoli 

984,000 

206,000 

1,180,000 

Civitavecchia 

1,032,000 

609,000 

1,117,000 

La Spezia 

887,000 

223,000 

1,110,000 

Fiume 

518,000 

425,000 

943,000 

Cagliari 

287,000 

645, 000 

932,000 

Piombino 

729,000 

168,000 

897,000 

Of these. 

Bagnoli is an 

iron and steel port, and 

Piombino an ore 

port with few 

facilities 

for general 


cargo. La Spezia Is a naval base, but has 3ome facilities 
for general cargo. Flume and Cagliari have a fair amount 
of general facilities and accommodations for a reasonable 
number of ocean-going vessels. 

Other less active, but usefully located ports, are 
given below. Cargo handled in 1959 is given where informa- 


tion is available. 



Port 

Location 

Total cargo 

(metric tons) 

Pol a 

Istria 

453,000 

Ancona 

East coast 

554,000 

Bari 

East coast 

728,000 

Brindisi 

East coast 

164,000 

Taranto 

South coast 

— 

Grotone 

SOUth COS31 

—- 

'■Reggio di Calabria 

Southwest coast 

— 

: Villa San Giovanni 

Southwest coast 



Important mainly as termini of the train ferry to Sicily* 


















































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OOWPIDMSTXAL 


- 5 - 


Port 

Location 

Total cargo 

Salerno 

West coast 


Castellamare di Stabia 

West coast 

— 

Torre Annunziata 

West coast 

— 

Pale mo 

Sicily 

654,000 

Catania 

Sicily 

567,000 

Messina 

Sicily 

391,000 

Olbia 

Sardinia 

83,000 


Making allowance for traffic in those ports for which 
no figures are available, it would seem that at least 
37,000,000 metric tons of Italy f s total 3ea~born0 cargo 
traffic of approximately 46,000,000 metric tons, normally 
are handled by the 27 ports listed above« 























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- 6 - 


C ONFIDEM? IA L 


C„ The Problem of Administration 

Under normal conditions, therefore, the problem of 
administering the ports of Italy is the problem of adminis¬ 
tering those 27 ports for all other ports are either 
secondary or minor• 

But under an occupation, certain new elements would 
enter the general picture. They are as follows; 

(1) The needs for imports would be considerably greater 
than in peacetime. 

a. Due to wartime disruption of Italian industries 
and Italian farming and due also to systematic pillaging 
by the Nazis, there will be great shortages of all kinds 
of necessary materials. 

b. If Italy is used as a rear base, large amounts of 
additional supplies will be needed by the Allied armies. 

(2) Until all of Italy and some parts of adjacent 
territory are occupied, all imports and exports will have 
to be by sea as all land entry to the country is from the 
north o 

(3) However, many of Italy 1 s ports have been seriously 
damaged and until they have been repaired, they will have 
very much less than peacetime capacity. 

Consequently, during an occupation, the agency charged 
with administering ports will be faced with the necessity 
of handling increased traffic with very greatly reduced 
facilities. Under a partial occupation, the problem would 
be even more difficult, for most of Italy’s really great 
ports are in the north. 

If, for example, the line of occupation ran from the 












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CONFIDENTIAL 


- 7 - 

mouth of the Tiber to Pescara (ooo okofrch m ap) , only Naples, 
among the big ports, would be available to the United Nations, 
with Bari and possibly Brindisi among ports of less 
importance which could handle a considerable amount of 
supplementary trad©• If the line were drawn from 
Viareggio to Rimini, Leghorn among the big ports, and 
Civitavecchia and Ancona among general cargo ports of some 
importance, would become available. If the Germans withdrew 
to the Po River line, Genoa, Savona, and La Spezia would 
become available. But only if virtually the whole country 
were occupied, would such ports as Venice, Trieste, Flume, 
and Pola be avilable and the United Nations be in complete 
possession of all Italian port facilities* 

Against this can be set the fact that, under normal 
conditions, not all Italian ports are used to full capacity* 
Naples and Bari are notable examples* If Naples were com¬ 
pletely restored and used to full capacity, it could handle 
as much cargo as any port in Italy* 

Finally, it should be remembered that compared to this 
country, ports and port facilities in Italy are very small* 

The Hudson River channel (New York and New Jersey) of the 
port of New lork in 1940 handled approximately 33,000,000 
tons of cargo or as much as the 12 most active ports of Italy* 
Providence, R«I«, which is not usually regarded as a major 
port, normally handles as much cargo as any port in Italy 
but Geno&<> 






















































































































C C NFIDI MTIAL 


- 8 - 

ii. administration and la.y 
A. Administration . 

1* Organization . In Italy 9 port administration is in 
tho hands of several branches of the government* 

The Ministry of Public '.‘forks is responsible for con¬ 
struction and maintainanee through the Offices of Civil Zngineer 
ing e Under the Minister of Communications is the Directorate 
Gfeneral of the Merchant Marine ( Dlrezione Generate della 
ferine Mercantile )* with Important agencies having broad powers 
of administration over ports and harbors. Notable among them 
Is the Corps of Port Captains ( Corpo delle Capltanerie di 
Porto) which is in charge of general port management, and 
from which the , lias directors, etc. (see below) derive 
theIr powers„ 

Maritime signals (lights, buoys, etc*) are under the 1 
Ministry of the Marine* Sanitary services are performed 
jointly by the maritime administrations {see below) and the 
Ministry of the Interior* Customs services are under the 
direction of the Ministry of Finance* The maintance of order 
and the Protection of the nubile treasury is in the hands of 
the port militia. This organization is a branch of the MVSN 
(Mlllzi a Voluntaria per la Slcurezza Nazionale) * It is re¬ 
sponsible for public security in the ports and along the shore a 
Following the fall of Mussolini* all Fascist militias were 
ordered integrated into the armed forces, and presumably the 
port militia was included. 













CONFIDENTIAL 


- 9 - 

ill so responsible for the policing of port areas were 
the public security police under the Minister of the Interior c 
2„ Maritime Zones, Compartments and Districts . For pur¬ 
poses of administration, the coastal areas of Italy are divided 
into maritime zones under tho t ]*urisdiction of the Ministry of 
C omiriun ications. 


Genoa 

Leghorn 

Lazio (Rome) 

Nanles 

Reggio di Calabria 

Bari 

Ancona 


Venice 

Trieste 

Carnaro (Flume) 
Cagliari 
Catania 
Palermo 


The maritime zones are subdivided into maritime compart¬ 


ments. At this point, because of the similarity of names, it 
is very important to note that there Is no connection what¬ 
soever between the maritime compartments and the regional 


compartimenti into v/hich Italy is divided. A regional com¬ 
part inento is a large area like Sicily, whereas a maritime 
compartment is a subdivision which applies only to the adminis¬ 
tration af shipping, arts, fishing, etc* 


A list of the maritime compartments follows: 


Imperia 

Savona 

Genoa 

La Spezla 

Vlareggio 

leghorn 

Portoferraio 

Civitavecchia 

Rome 

Gaeta 

Naples 

Torre del Greco 


Castellamare di Stabia 

Salerno 

Pizzo 

Reggio di Calabria 

Taranto 

Brindisi 

Bari (Molfetta) 

Ancona 

Rimini 

Ravenna 

Chioggia 

Venice 


Trieste 

Pola (Lussinpiccolo) 

Fiume 

Zara 

Cagliari 

01b la 

Messina 

Catania 

Syracuse 

Porto Fmpedocle 

Tranani 

Palermo 







































































- 10 - 


co;ifid2:jti/;l 


The maritime compartments arc divided Into districts 
( circondarii )* 

In many places where cargo is landed but which are not 
sufficiently important for either compartmental or circuit 
offices, there are established local oort offices or coastal 
delegations ( delegation! di spiaggla ), which are under the 
jui'isdiction of the circuit office. 

3 ® Port Commanders . 

Lach maritime zone is in charge of a maritime director, 
and the compartments and districts have appropriate heads 
( cap! di comparpimento, cap! al circondario ). Y/hen the 
seat of a compartment coincides with the seat of a maritime 
zone, the maritime director is also the compartmental head,, 

'./hen the seat of a district coincides with the seat of a compart¬ 
ment , the compartment a 1 head is also the head of the district., 

Compartmental heads — including maritime directors 
acting as compartmental heads — district heads, and the heads 
of local port offices are the commanders of the ports or land¬ 
ing-places in which they have their respective seats. 

The port commander has considerable authority and 
indeed in his hands lies most of the practical administration 
of each port. 

He regulates and supervises the entrance and exit of 
ships in the waters of the port; their anchorage and mooring; 
























































































































































































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11 


CONFIDENTIAL 


and the alighting, anchorage ( stanziamento ) 0 and movement of sea 

planes, This, however, is done in conformity with the 

provisions of appropriate ordinances. He can order shi.ps to 
*> 

anchor or weigh anchor and he controls all novement of ';h‘; 3 
In the nort. 

In certain cases, the port commander regulates the 
use of maritime domain areas and appurtenances for loading 
and unloading and the temporary deposit of goods or materials 
for a neriod of time beyond what is necessary for ordinary 
port operations. He can fix charges therefor. The port com¬ 
mander who grants these privileges also revokes them. 

Upon the termination of the period fixec or he 
temporary denosit of goods and materials, or in • - * se o; 

abuse, or for other serious cause, t.he port commander can 
order their immediate removal. fcn case of failure to carr; 

out an order of removal, the nort commander can have the removal 
effected at the private person’s expense. The port com¬ 

mander regulates and supervises the loading, unloading, and 
deposit of goods, and the embarkation and debarkation of 
passengers 9 again according to ordinance. The : adding, un¬ 
loading, and storage of arms, munitions, and dai ; ;ous 
articles are subject to special laws and regula:ions. 

In the same manner, the port commander regulates an 
supervises the use of ships, floating facilities ( galleggian tl > , 
and other floating structures engaged in port services. 

However, only the compartments! head appears to 00, now or 0 
limit the number of ships and galleggianti engager, in pert ni 
harbor services. 






















































12 - 


CCNFIDJ.'TIAL 


Subject to the provision made in the Code of Naviga¬ 
tion* for pilotage companies, the port commander supervises 
pilotage. ./here there are no pilotage companies, hi can author¬ 
ize other properly equipped persons to engage in the service. 
However, pilots are licensed by the compartmental head. 
Incidentally, a special register of licensees is kept, and 
rates for pilotage are approved by the Minister of Communi¬ 
cations, after the interested syndical associations 
(associations representing employer and employee interests) 
have been heard. 

4* Compartmental Heads . 

Certain powers seem reserved to compartmental heads, 
or at any rate to those port commanders who arc also heads 
of compartments * ./here submerged objects in a port con¬ 
stitute a hazard to navigation and where the responsible 
person fails to remove them, the compartmental head can order 
them removed. .Removal is at the expense of the responsible 
party* 

..here port works or facilities are- damaged, it is 
the duty of the compartmental head to determine the extent of 
the damage. He does this througn the Office of Civil Engineer¬ 
ing (attached to the Ministry of hiblic Works) and directs 
the responsible party to effect the necessary repairs within 
a given time. If the responsible party fails to do so? re¬ 
pairs can be made by the state at his expense. 

In the Code of Navigation (see bibliographical note) is found 
most of the law governing port operations. 









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13 


C 0 MFID.'.NT JaL 


Franchises for towing are also granted only by the 
compartmental head, according to the provisions of a regula¬ 
tion. The franchise sets fortn the number and type of vessels 
to be used. Rates are fixed by the compartmental head after 
the interested syndical associations have been heard* 

5* Port Labor . 

In ports where the traffic justifies it, the control 

(disciplina) of port labor lies in the hands of the Offices of 

Port Labor ( Uffici del Lavoro Portuale) . This .includes, the 

labor involved in the embarkation, debarkation, transshipment, 

\ 

and movement of cargo. These offices are created by a decree 
of the Minister of Communications, with the previous advice 
of the compartmental head. Lach office has a director, assisted 
by a council of port work constituted according to regulation., 

In ports where such an office is not justified, control and 
supervision is by the port commander. 

The workers engaged in port operations are or; anized 
in companies or groups, ( ma 03 trance) subject to the super¬ 
vision of whatever authority is responsible for the control 
( disciplina ) of port labor. The maritime director provides 
for the constitution, fusion, or suppression of such companies 
and groups, but in conformity with regulation. Unless other¬ 
wise determined by the Minister of Communications, the 
provision of port labor is reserved for such companies or 
groups. They appear to be monopolistic guilds. 

6 . Admiralty and Criminal Jurisdiction . 

Port commanders have jurisdiction in the case of 
certain maritime torts and certain other maritime controver- 
cipq where the amount involved does not exceed ten thousand 













- 14 - 


OCl-OTOlSriTIAL 


lire* The tribunal! have jurisdiction in cases involving 
more than ten thousand lire. However, in cases involving 
more than ten thousand lire, the commander must endeavor to 
bring about an amicable composition between the parties, when 
requested to do so. 

Port commanders -/no are heads of districts ( comandantl 
di porto cap! d.i circondario ) have jurisdict'on with respect 
to criminal violations of the Code of navigation, except where 
consular authorities have jurisdiction* m appeal goes to a 
tribunals end from there to the Court of Cassation, the highest 
court of Italy. 

The following broad and sweeping powers of the Minister 
of Communications should be noted* Ho can limit or prohibit 9 
for reasons of public order, the transit and stopping (sosta) 
of merchant ships in territorial waters, fixing the zones to 
which prohibition extends. 





























































































15 - 


C OTTF IDF,TIT IA L 


Bo Special Port Administrations 

In certain more important ports there is a system of 
mixed operation* The national government, through the 
machinery described above, handles the broader aspects of 
administration, but it leaves actual operation ( gestione 
correnfce ) to special corporate bodies created for the 
purpose* They are recognized in the Code of Navigation 
and are known as ent i* 

The following ports have such so-called "autonomous” 
administrations % 

1 * Flume 
2* Genoa 
3* Naples 
4o Trieste 
5« Venice 

lo Flume 

The corporate body in charge of administering the 
port of Flume is the Azienda dei Magazzini Generale di Plume * 
It was created by a royal decree of September 29, 1927 to 

stay in being until December 31, 1939, but it was provided 

that it could be continued in existence until December 31, 

1947 by royal decree-law mad© on the proposal of the Minister 

of Communications in agreement with the Ministers of Finance, 
National Economy, and Public Works * Its existence seems to 
have continued beyond the 1939 date* 

Its capital was 1,000,000 lire, of which the Chamber 
of Commerce and Industry of Flume and the autonomous Flume 












CONFIDENTIAL 

- 16 - 

section of the Istituto Federale di Credlto per 11 
Risorgimento delle Venezie each subscribed half* The 
Azlenda is administered by a council composed of a 
president and eight members, appointed as follows: 

1) The president is named by royal decree upon the 
proposal of the Minister of Communications; 

2) Four members representing the government, two 
of them named by the Minister of Communications, one by 

the Minister of Finance, and one by the Minister of National 
Economy; 

3) Two members chosen by the Chamber of Commerce 
and Industry of Fiume, one of which is designated by the 
Fascist Provincial Federation of Commerce; 

4) Two members delegated by the Fiume section of the 
Istituto Federale di Credito per 11 Klsorglmento delle V-ane zleo 

It has the following powers: 

a* To construct new port works* This would apparently 
include moles, wharves and quays as well as lesser port 
installations * 

b e To operate the port* 

Co To maintain and keep in repair the warehouses t 

do To assume responsibility for all concessions, 
such as the leasing of warehouses and port areas* 

These powers would seem to be very extensive, but it 
should be remembered that 1) the government and the Fascist 
Party had ample representation in the governing council; 

2) according to the Code of Navigation, the constitution and 
regulations of the above body and of the four similar bodies 























































































CONFIDENTIAL 

- 17 - 

governing Genoa, Naples, Trieste, and Venice remain in 
force only insofar as they are compatible with the pro~ 
visions of the code; 3) the Azienda still remains under 
the general control of the Ministry of Coramunications* 

2„ Genoa 

The corporate body in charge of administering Genoa 
is the Consorzio Autonomo per l , Esecuzione dalle Opera e 
per l ? Esercizio del Porto dl Genova 0 It was created by a 
law of February 12, 1930, and was to continue in being for 
sixty years. It rests on a somewhat broader base than the 
ente which administers Flume, being constituted of a com- 
pulsary union of the state, of certain provinces (including 
Genoa), of certain communes (including Genoa), of the 
Chamber of Arts and Commerce of Genoa, and of the corporate 
body directing the railway services of Genoa. 

Representatives of these groups and of certain others 
make up an assembly* The president of the consorzio represents 
the national government* He is chosen by royal decree upon 
the proposal of the Minister of Public Works in agreement 
with the Minister of the Marine* He cannot be chosen from 
the membership of the consorzio . It thus seems that the 
Minister of Public Works plays a more Important part in 
Genoa than he does In Flume* However, a certain measure of 
control still rests with the Minister of Commur icationso 
3* Naples 

The corporate body in charge of administering the port 
of Naples, is the Ente Autonomo del Porto di Napol i, It was 












































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CONFIDENTIAL 

- 18 - 

created by a law of May 6 , 1940, to have a life of thirty 
years beginning on tho date at which the law went into 
effect, Ju.y 1, 1940© The ente i 3 in charge of the 
administration and operation of the port, but it is subject 
to supervision and control by the Ministry of Communications 0 
Its governing organ Is the Council of /drain!stration, 
which is composed of a preaider a vice-president, the 
chief engineer of the Civil Engineering Corps of Naples, the 
Director-in-Chief of Customs at Naples, the podesta of 
Naples or his representative, and a few other members. 

The president is named by royal decree, upon the 
proposal of the Minister of Communications after the Council 
of Ministers have expressed their views. He appears to have 
considerable power© The vice-president Is the maritime 
director of Naples. 

There is also a directing committee which consists 
of all the members of the Council of /dministrailon specifically 
named above, with the exception of the podesta . There is 
also a director general, chosen by competition or named 
by the Minister of Communications. 

4 a Trieste 

The corporate body In charge of administering Trieste 
is the Magazzini Generale di Trieste © It vms created by a 
royal decree of September 3, 1925, with a life of twenty 
yoars. The following are subscribers to its capitals 
the provinces of Trieste, Pola, and Udinej 
the commune of Trieste 5 







































CONFIDENTIAL 


- IS - 

the Chamber of Commerce of Trieste; 
the Federation of ship owners of Venezia Giulia; 
the Federation of Commerce of Venezia Giulia; 
the Industrial Federation of Venezia Giulia; 
the Triestine Association of Shippers. 

The Council of Administration consists of a 
president named by royal decree on the proposal of the 
Minister of Communications; two members named by the 
Minister of Communications; three members named respectively 
by the Minister of Finance, the Minister of National 
Economy, the Minister of Public Works; representatives 
of the capital subscribers; and representatives of the 
workers who perfom port labor. 

The council sets up an executive committee, of which 
the president is chairman. 

5* Venice 

The corporate body in charge of administering the 
port of Venice is the Proweditorato del Porto di Venezia. 

It was created by a royal decree-law of March 14, 1929, 
but is dependent upon the Ministry of Communications. 

The provveditore of the port is the presiding 
officer of a council of administration, which includes also 
the commander of the port (who is vice-president), th© 
podesta of Venice, and the Superior Director of Royal 
Customs at Venice. There is also an executive committee, 
of which the provveditore and the commander of the port 
are members, and an advisory committee on traffic. 

























CONFIDENTIAL 

~ 20 - 

6. Conclusion 

While the powers of each of the foregoing entl vary 
considerably, each seems to be given sufficient authority 
over quays, port railways, cranage, and warehouses to 
ensure successful operation of the port. In general, 
those powers seen comparable to those of the administrative 

port's 

head of those powers which are directly administered by 
the government. But the powers of the ente seem to be 
even more inclusive, and of course they take much better 
care of local interests and of the interests of the area 
served by the port® 































































































































coupid:-,i:tial 


- 21 - 

C. Property Interests w1th Respect to Ports 

1 ° Property Rights of the rotate 

Tho state has paramount property rights with respect 
to the coast and ports. According to the Italian Civil 
Code of 19^2, the following belong to the state and aro 
part of the public domain: 

(1) the shore of the sea ( lido del nare ); the 
coast ( spiaggia) ; 

(2) the roadsteads ( rado ); 

(3) the ports; 

(1|) the rivers, streams, lakes, and other waters 
defined as public by law* According to the Italian Code 
of Navigation of I9k2, the lagoons ( laguno ); the mouths 
of rivers emptying into the soa; basins of salt wator or 
saltish water which communicate freely with the sea at 
loast during part of the year and aro suitable for maritime 
navigation aro also part of the public domain. 

The property Interest of the state extends to shore 
and port facilities. According to the Civil Code, works 
usod for national defense belong to the state. Tills ob¬ 
viously Includes certain shoro and port works. According 
to one writer they Include moles, quays, wet docks, and 
channels, ’..hether state ownership extends to all such, port 
works cannot be established from available information, but 
where they do belong to the state they aro part of the mari¬ 
time domain. In places in which the sea communicates with 
































































































' 










- 22 - 


C OITFIDFI! TIA L 


canals or rivers or other water courses, the Units of the 
naritino domain are fixed by the Minister of Communications 
in agreement with the I. inis tors of Finance and of fublic 
works, and of other interested ministers« 

2o Grants to Private Users 

The maritime administration ( the Pireziono Oenoralo 
della Farina Ilorcantlle through it3 department in charge 
of port facilities) can grant the occupation and use, eithor 
exclusive or partial, of public domain property and of zone's 
of territorial aca 0 r fliose grants are f° r a specified period 
of tine o 

Grants for more than two but not more than nine years, 
and grants for not more than a two-year period, which relate 
to facilities ( impianti ) difficult to remove, can bo made 
by the maritime director of the zone in which they cxisto 
brants for not more than a two-year period, when they do 
not relate to facilities difficult to remove, can be made 
by the head of the maritime compartment* 

‘where there is more than one request for a Grant, pre¬ 
ference i3 Given to the request which, in trie judgment of 
the administration, is in the greater public interesto When 
this cannot be determined, the procedure is as follows: 

(a) In the case of grants for more than a two-year 
period, or which rolato to facilities difficult to remove. 












































* 






























* ' • ’ . 



























































































































































































































































COITFl'DirTIAL 


- S3 - 

there is a public bidding ( pubbllca gara ) or private auction 
( llcltazlone privata )• 

(b) In the case of grants which do not relate to 
facilitios difficult to ronovo, prcforenco is given to the 
previous grantee or, in the absence of a previous grant, a 
private auction is heldo 

The grantee can, with the previous authorization 
of tlio granting authority, place incumbrances ( costituire 
ipoteca ) on works constructed by him on domain proporty® 

3o Revocation of Grants 

Revocation and lapse of grants are carefully regulated<> 
These revocations or lapses are declared by tho granting 
authorityo 

Grants for not noro than a two-yenr period, and which 
do not relate to facilitios difficult to remove, are revoc~ 
able in whole or in part at tho discretion and judgment of 
the maritime administration. Grants for more than a two- 
year period, or which relate to facilities difficult to 
remove, are revocable at the discretion and judgment of the 
maritime administration, but onl:/ for specific reasons con¬ 
nected with the public interest e 

Revocation doos not ipso facto create a right to 
LodefflL-ityo In the case of partial revocation, there is a 
proportionate reduction of the rental, unless the grantee 
chooses to exercise the power to renounce the grant; in tho 
latter evont, he notifies the granting authority within 30 










































































































































































































COITPIDrJTTIAL 


- 24 - 

days after receiving tlio notice of the intention to revolve 
The grantee can also be compensated when he has constructed 
fixed works ( opere stabilitl) . But the indemnity can never 
exceed the value of the works at the timo of revocation and 
any amortization is always deducted** 

I 4 .. Renunciation of Grants 

On his part the grantee can renounce the grant when 
utilization is renderod impossible in part because of works 
constructed in the public interest by the state or any pub¬ 
lic corporate body® 

If utilization is rendered totally impossible* tho 
grant is cancelled. If use is restricted through, natural 
causes beyond human control, the grantee has a right to a 
corresponding reduction In rental. 

5o Lapse of Grants 

A grant lapses where the grantee has committed certain 
acts forbidden in the grant, or omitted to perform certain 
acts prescribed therein, such as unlawfully permitting others 
to enjoy the grant or failing to construct works which tho 
agreement called for. In the case of a lapse, there Is no 
right to compensation for works constructed nor for exponses 
borne 0 

Iluch can probably be learned about the state and dis¬ 
position of port property by an examination of the records 
at tho different ports. Tho Code of Navigation provides 















■ 



























































C OITPIDT7TIAI * 


» 25 » 

that a registry of tho grants made in tho area r;itl;in its 
jurisdiction should bo kept at tho head offico of ovory 
maritino compartment. 





26 - 


c oi:fid~z:tiaJj 


D. Corner a tivo State 

The organs of tho corporativo 3tato foil Into tliroo major 
classifications. First wore those bodies organized to deal 
with the interests of Capital and Labor. Lecond were tho 
administrative organs concerned with the co-ordination and 
control of the economic machinery of tho state: tho corpora¬ 
tions, tho Finis try of Corporations, and the institutions 
rolated to then. Ihird was tho Fascist Party. 

However, the organs included in each category did not 
actually function separately but wore at loast theoretically 
synthesised within the corporative state. For instance, 
although the capital and labor syndicates wore in theory rep¬ 
resentative associations, all elections of officers and 
governing bodies were subject to confirmation by the minister 
of Corporations, and officers of the Fascist Party were 
generally chosen* 

Insofar as ports were concerned, the Federazione nagIonalo 
fascista deyll esorconti Inprose del traaporti marIttint od 

auslllarl represented the employers and the Federaziono 
nazlonalo fascista doi sindlcatl del lavoratori oortualo and 

the Fedoraziono nazlonalo della gonto del mare represented 
the employees. 'Eheir principal functions related to tho 
settlement of labor disputes and the provision of moral and 
oconomic aid and vocational instruction. It is assumed that 
general labor problems fell into their hands, whereas specific 
disputes were handled through the Offices of Port Labor (see 
II,A above) 
































- 27 


coi:pid';:ttial 


Tho administrative organ was the Coroorazione del nare 
e doll 1 aria * 

Ilowevor, In addition to the specific functions described 
abovo, the various component bodies of the corporative stato 
(all of which wore strictly controlled bp the Fascist Party) 
had broad disciplinary and rovulatory pov/ors within thoir 
special fields of activity* The Corporazione del naro e 
dell*aria was the overall supervising and coordinating organ 
for maritime and air transport* 

Tho Dadoglio government promised extonsive reforms In 
the Fascist corporative system, but did not dissolve any 
of the various organizations prior to its flight from Hone® 
The loc al Fascist syndicates and federations have been 
abolished by AUG in Sicily* 

Supposedly these organizations have been or will be 
abolished in the rest of Italy, but thoir influence may 
still be felt® 

























































• 






• 


















- 28 


CONFIDENTIAL 


IIIo SUGGESTIONS FOR THE MINISTERING AGENCY 
A 0 The General Problem s 

In administering the ports of Italy in such a way as to 
secure maximum operation, the following problems will have to 
be faced by the administering agency: 

io The reconstruction of the porta This will include th® 
repair of breakwaters where their damage affects port operation; 
the reconstruction of moles, wharves,and quays; the removal of 
such sunken ships as interfere with harbor operation; and, 
where necessary, the rebuilding of warehouses which have been 
damaged or destroyed, and the replacement of damaged or destroyed 
cranes„ 

2c The restoration of maritime signals. This will include 
the putting into service of lighthouses and the replacement 
of buoys„ 

3o The provision of pilotage, 

Uo The dredging of channels, where necessary.. This will be 
particularly necessary where ports have been neglected due to 
the exigencies of war., 

* 5, The restoration of normal port operating conditions* 

This will include, among other things: 

a) th® provision of tugs and tug-boat services; 

b) the provision of lighterage; 

e) the restoration of a control system such as that 
normally directed by the port captain 0 There will have to be 
an authority to regulate anchoring and weighing anchor, the 










































- 29 - 


CONFIDENTIAL 


assignment and usg of berths, and the use of port areas for 
temporary or prolonged storage of cargo* 

6 0 The establishment of proper exits inland* If the port 
is to be used to a maximum it will b© necessary to have either 
road or rail access to the wharves and quays, and either road 
or rail clearance facilities to points inland,, It Is obvious 
that the usefulness of a port is not determined by the amount 
of cargo that can be put ashore, but by the amount which can 
be put ashore and then moved to the points where it is to be 
used e 

7o The establishment of a health control« 

So The establishment of a control for labor disputes„ 

9o The setting up of an organization for public security• 
There must be some sort of harbor police„ 

It should be plain, of course, that the foregoing list of 
problems is by no means complete and that others will suggest 
themselves during actual operation. One problem likely to 

i 

arise is that of private property located on the public domain 
through the mechanism of grants (see lie, C above) „ Since many 
warehouses are in this category, and since warehouses are among 
those installations which have been particularly hard hit by 
bombing, many decisions relating to this sort of problem may 
have to be nade 0 




























' 































































































































































































CONFIDEI^TIAL 


- 30 - 

B. The Advantages of Mixed Control * 

In attempting to administer Italian ports, the multiplex 
system of Italian port control should offer many advantages, 
for It is obvious that wherever possible it is desirable to 
leave actual operations and even some administration in the 
hands of existing agencies* This is both in the interests of 
good will„ and because the bodies or organizations will have 
considerable experience, which an outside agency could acquire 
only with difficulty and over a period of time* 

Indeed, it should be almost axiomatic that existing personnel 
including labor, should be used very widely, and that administer 
Ing officials should be retained, at least in an advisory ca¬ 
pacity, unless so deeply attached to Fascism as to make their 
employment dangerous,, 

But since the various phases of port operation have been 
under the direction of different Italian agencies, it would be 
entirely feasible to take over certain functions entirely, to 
employ mixed control in others, and to leave others in Italian 
hands* Furthermore, different arrangements could be made for 
each Italian port* 

Thus it would bo possible to assume control of maritime 
signals In one port and leave them in Italian hands in another, 
to assume control of port operations in one port and leave them 
in Italian hands in another, to assume control of security In 
one port and leave it in Italian hands in another, and so on* 







■ 

' 

. 











- ol - 


CONFIDENTIAL 


This is important because the problems are not the sane in 
all ports a For instance , in the five large ports having special 
administrations, it i3 reasonable to expect administrations much 
more indoctrinated with Fascism than in the other ports of Italy, 
whose officials, though ostensibly Fascist for the purpose of 
preserving their jobs, vould be much more like civil servants 0 










£c> ■ 
















. . ■'» 


X 





































- 




* 


















- 32 ~ 


CONFIDENTIAL 


Co Specific Recommendations , 

In General , there should be a central administrative agency, 
and to it should bo attached experts in all phases of port 
operation* This agency should have directive authority over all 
Italian ports a It should determine what functions aro taken 
over and what functions remain in Italian hands 0 

In each port there 3hould also be a port directing agency 9 
subject to the central agency bit with all the necessary local 
pavers. At the rainImuaa, it should be able to advise the central 
agency whether Italian control was working, and whether it should, 
be extended or ^educed, ,t least in the importsat oorts, this 
agency should also have its corps of exports in the various 
phases of port operation nt the ... 

officers * with the Italian agencies loft in control. At the 
maximum each would be able to assume direct.!- u of his particular 
competence® 

In regard to specific problems mentioned In III. A above, 
the following observations may oe of value,. 

1 Port reconstruction It Is assumed that wie ... any will 
have restored to operation at least those ports which are of 
great military importance, Where further reconstruction is 
needed 9 close cooperation with existing agencies is desirabia 
because of the long life of port installations, the property 
rights involved (see II C above), and the possibility for 
friction and ill will* 

2o The restoration of maritime signals® This might well 
be left in the hands of the Ministry of Marir- in 





























































- 33 - 


CONFIDENTIAL 


be to the advantage of Italy to havo signals restored * The 
question of priority, and of what signals can safely be re¬ 
stored in view of continued military operations in or near 
Italy, will have to be decided b; the administering agency and 
by the military* 

3o The provision of pilotage* Obviously it would be ad¬ 
vantageous to secure the use of local pilots wherever possible,, 
4o The dredging of channels* This is a problem that would 
have to be decided locally* Local personnel would be desirable,. 
Craft might have to be provided* 

5o The restoration of normal port operating conditions* 
a* Tugsn See 4 above 0 
b 0 Lighters* See 4 above* 

Co Control system* Except in those ports where military 
considerations are involved, control might well be left in the 
hands of the existing port administrations* Where military con- 
siderations are still involved, control by the directing agency 
would be desirable, but much of the existing personnel could be 
used* 

6 0 The establishment of proper exits inland* This problem 
should be solved in coordination with the agencies administering 
roads and railways* The agency administering ports should main¬ 
tain close relations with those agencies* 

7* The establishment of health control* This problem would 
probably not be handled by the agency administering ports* 

So The establishment of a control for labor disputes* If 
existing agencies are to be used, those functioning under the 










































CONFIDENTIAL 


- 34 - 

Offices of Port Labor would probably be more desirable then 
tho3-e functioning under the Ministry of Corporations, for their 
vested interest in Fascism would be less. But probably u new 
agency, Italian but under the direction or guidance of the 
agency administering ports, would be desirable* 

9o The setting up of an organisation for public security. 

In ports of military importance this $ould not be left in 
Italian hands, but where military considerations are not in- 
volved Italian police forces might be used under supervision 
of the administering agency, and subject to the general limitations 
of the use of Italian police bodies* 

A few other matters deserve consideration: 

Labor 0 If Italian labor is paid, fed, and treated con¬ 
siderately, there is no reason not to expect the fullest and 
most useful cooperation. 

Fascists and non-Fascists * There is no rule of thumb for 
determining who are Fascists and who non-Fascists* On one hand, 
there are many enrolled Fascists who had little or no love for 
the regime, but who did not dare take the economic ri3k of not 
joining the party* On the other hand, there will be some who 
were non-Fascists because they could not fit into the Fascist 
scheme, who will appear as opposed to the regime for opportunist 
reasons* It is the opinion of this writer that cooperation can 
be expected, or at least attained from all Italians except for 
three small groups: 1) the small number of doctrinnaire Fas¬ 
cists to whom Fascism is almost a religion (these doctrinnaire 
Fascists will be much fewer than tho doctrinnaire Nazis); 









- 35 - 


C OITF ID 3NT IAL 


2) the limited number of high officials and perhaps big in~ 
dustrialists whose personal fortunes and even lives are in¬ 
volved in Fascism; 3) those individuals who might be induced 
by bribery or intimidation to aid the Fascists in the field of 
espionage, sabotage, etc* 

The administering personnel * Since many decisions will 
have to be made on the snot and since they will require firm¬ 
ness, tact, and a knowledge of the Italian character, it goes 
without saying that a wise choice of personnel by the administer- 
ing agency is of paramount importance. 



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„nx 9«ia esviX nova Me e^m/dnot loco3iaq otoaw 
kcojxXni od ddaici odvir slaMivi &nx z-a ad (C ..xslos 
.£9 ^ axij ni edalosalL ©rid ibxa od xioXdBf>iixdni 

0 ©da t D3BdodB; 




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• ni 9 ib saviX nave £>ixb s -nadiot CanoS'ieq as oaw 
h on al od dd^iiti odv* sXbuMvI £>ni o: odd (c jscsir.s 
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*odo ,o^BdodB?; 



B£IO 5io9i vittr eoniB . lartr.oQiaq .anit ageij ■ 
••- ©niwia- IX/w t^ri-d oo/iis ibna doer a odd r»c oi-r 

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sib eovXi r.8V9 one a^nadnot tenoa-ieq 







- 36 - 


CONFIDENTIAL 


Bibliographical Note 

The Code of Navigation of 1942 which contains a full dis¬ 
cussion of many of the points and topics dealt with in this 
study, and can be consulted where more detailed information 
is desired* 

The Almanacco Azzurro (1933-4) contains a detailed break¬ 
down of port areas, but because of its rather early date such 
information should be used with caution* There are also j^rts 
on the ^ive ports having "autonomous” administrations (p« 347 
et seq „); maritime agents (p« 5#1); mercantile, maritime, and 
port customs (usi) (pp Q 593; 971); pilotage (p e 965); legis¬ 
lation (p* 864)* A later edition, if it could be found, would 
be even more usefulo 

The following (not used in the present study) might be ex¬ 
amined for further material: 

Annuario Genovese ( Guida di Genova ) 1937-3#, p. 647o 

II Porto di Genova (1933)» A much later edition of this 
book might be very valuable* 

II Bollettino Ufficiale del Consorzio Autonomo di Genova «, 

Late issues of this periodical might be very valuable* 

Porto di Venezia * Late issues of this periodical might be 
very valuable a 

Guida Generale di Trieste (193#), PPo 103; 106; 166 a 

Commercio e3tero e Turismo (1939), PPo 292, 299, 302, 307* 

In connection with the five "autonomous” ports, a wealth 
of detail will be furnished by the laws 0 













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CONFIDENTIAL 


- 37 - 

It should be borne in mind that no study of this sort can 
be considered complete without a study of not only legislative 
material, but of pertinent judicial and administrative decisions* 
Opinions of text writers may also have some value* 




SAVOKA 


GENOA. 


La SpQsia 


LEGHORN 


ivitavoochia 



VENICE 


Bagno^S^mPLES 

Torr© Anmin^i C &s to 11 amare 

di Stabia' 



rindisi 


rotone 

ilia S§4 Giovanni 
gg^y-di Calabria 


PRINCIPAL SEAPORTS 
OP ITALY 


Seals 185,000*000 














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